COMMISSION STAFF WORKING DOCUMENT 2022 Rule of Law Report Country Chapter on the rule of law situation in Cyprus Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions 2022 Rule of Law Report The rule of law situation in the European Union
Date: 2022-07-13
Institutions: European Commission, Secretariat-General
Subjects: Cyprus, coronavirus disease, corruption, democracy, epidemic, independence of the judiciary, infringement of EU law, pluralism in the media, political rights, rule of law

EN 

  EN 

   EUROPEAN COMMISSION  Luxembourg, 13.7.2022  SWD(2022) 513 final  COMMISSION STAFF WORKING DOCUMENT 2022 Rule of Law Report        Country Chapter on the rule of law situation in Cyprus Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions 2022 Rule of Law Report          The rule of law situation in the European Union {COM(2022) 500 final} - {SWD(2022) 501 final} - {SWD(2022) 502 final} - {SWD(2022) 503 final} - {SWD(2022) 504 final} - {SWD(2022) 505 final} - {SWD(2022) 506 final} - {SWD(2022) 507 final} - {SWD(2022) 508 final} - {SWD(2022) 509 final} - {SWD(2022) 510 final} - {SWD(2022) 511 final} - {SWD(2022) 512 final} - {SWD(2022) 514 final} - {SWD(2022) 515 final} - {SWD(2022) 516 final} - {SWD(2022) 517 final} - {SWD(2022) 518 final} - {SWD(2022) 519 final} - {SWD(2022) 520 final} - {SWD(2022) 521 final} - {SWD(2022) 522 final} - {SWD(2022) 523 final} - {SWD(2022) 524 final} - {SWD(2022) 525 final} - {SWD(2022) 526 final} - {SWD(2022) 527 final}  
 
 
ABSTRACT 

The  structural  reforms  of  the  Cypriot  justice  system  which  are  being  elaborated  by  the 
Government are progressing, albeit  with  delays.  The draft legislation on the splitting of the 
current Supreme Court, voted by Parliament on 7 July 2022, raises certain concerns regarding 
the procedure of the appointment of judges in  the future Supreme Constitutional  Court and 
the High Court and the  composition  of the Supreme Council of the Judicature.  The Venice 
Commission  has  issued  recommendations  on  this  issue.  The  planned  strengthening  of  the 
budgetary independence of the Law Office by the Government is delayed. The justice system 
continues  to  face  serious  challenges  as  regards  its  efficiency  but  digital  solutions  are  being 
applied and planned. The new rules of civil procedure are being implemented and expected to 
have a positive impact on the general efficiency of the justice system. Further reforms aim at 
overcoming  important  challenges  for  the  efficiency  and  quality  of  the  justice  system,  in 
particular through digitalisation. The Bill establishing the Commercial and the Admiral Court 
was adopted by the Parliament on 12 May 2022. 

Cyprus enacted the law on the protection of whistleblowers and the law on the transparency 
of lobbying. The legislation on asset disclosure for elected officials remains pending before 
the Parliament. The institutional framework was also advanced with the establishment by law 
of a National Anti-Corruption Authority. The implementation of the anti-corruption plan has 
continued. Despite the increased resources allocated to the Attorney General’s Office, results 
on  the  investigation  and  adjudication  of  high-level  corruption  cases  are  lacking.  The 
implementation  of  integrity  rules  for  specific  sectors  of  the  administration  shows  results, 
although  no  progress  was  made  for  the  general  public  administration.  The  scheme  for 
citizenship  through  investments  was  phased-out  to  address  the  recommendations  of  an 
inquiry commission.  

Freedom of expression and the right of access to information find legal and formal protection 
in the Constitution. Secondary legislation expressly ensures protection of journalistic sources, 
fosters media pluralism in the radio and television sectors and establishes the framework and 
conditions  for  public  access  to  information.  Laws  adopted  in  2021  expressly  declare  the 
independence  of  the  Cyprus  Radio  and  Television  Authority  and  media  ownership 
transparency.  While  the  Law  on  the  Cyprus  Broadcasting  Corporation  (CyBC)  lays  down 
rules on the governance and financing of public service media, certain weaknesses have been 
identified  relating  to  the  appointment  and  dismissal  of  CyBC’s  board  members.  A 
modernisation  of  the  Law  on  the  Cyprus  Broadcasting  Corporation  as  well  as  of  the  rules 
regulating  the  employment  conditions  of  the  organisation  are  being  considered  by  the 
authorities. 

Τhe consultation process on legislative proposals remains limited and concerns exist on the 
access  to  drafts  by  the  public  and  the  involvement  of  civil  society  organisations  at  a 
sufficiently early stage. The Government adopted an Action Plan in September 2021 aiming 
at  the  simplification  of  legislation  in  general  and  the  reduction  of  bureaucracy.  The 
Government has taken action to better assist civil society and to improve communication with 
public authorities by creating a dedicated online platform, while judicial proceedings are still 
ongoing  regarding  the  registration  and  operation  of  a  civil  society  organisation.  Human 
resources  of  the  Ombudsperson  are  being  reinforced  but  concerns  remain  in  particular  as 
regards the selection and appointment procedures and the pluralism in the composition of the 
Commissioner’s office.  

1 

 
 
RECOMMENDATIONS 

In addition  to  recalling  the commitments made under the national  Recovery and Resilience 
Plan relating to certain aspects of the justice system and the anti-corruption framework, it is 
recommended to Cyprus to:  

  Ensure that the reform on the appointment of the Supreme Constitutional Court and High 
Court  judges  takes  into  account  European  standards  on  judicial  appointments  and  the 
opinion of the Venice Commission. 

  Ensure that the reform on the composition of the Supreme Council of the Judicature takes 
into account European standards regarding Councils for the Judiciary and the opinion of 
the Venice Commission. 

  Continue to improve the effective investigation and adjudication of high-level corruption 
cases,  including  by  strengthening  the  Office  of  the  Attorney  General  and  its  budgetary 
independence. 
Introduce  rules  on  asset  disclosure  for  elected  officials  to  establish  regular  and 
comprehensive filing, combined with effective, regular and full verifications. 

 

  Strengthen  the  rules  and  mechanisms  to  enhance  the  independent  governance  of  public 

service media taking into account European standards on public service media. 

  Establish  a  framework  for  the  effective  and  timely  consultation  of  stakeholders  in  the 

legislative process. 

2 

 
 
 
I. 

JUSTICE SYSTEM 

The court system1 is composed of six District Courts, six Assize Courts2, the Administrative 
Court3,  the  Administrative  Court  of  International  Protection4  and  the  Supreme  Court5.  The 
process  of  establishing  a  separate  Constitutional  Court  is  ongoing.  In  addition,  there  are 
family  courts,  rent  control  courts,  industrial  disputes  courts  and  a  military  court6.  First 
instance  judges  are  appointed,  transferred  and  promoted  by  the  Supreme  Council  of 
Judicature (SCJ), which is composed of all the members of the Supreme Court (the President 
and 12 Justices)7. The Prosecution Service is independent and organised under the Attorney 
General  of the Republic8.  The Attorney General  heads  also  the  Law Office of the Republic 
which  is  an  independent  service9  assisting  him,  not  subjected  to  any  ministry.  Cyprus 
participates in the European Public Prosecutor’s Office (EPPO). The independent national bar 
association has regulatory and disciplinary competence as regards its members. 

Independence  

The level of perceived judicial independence in Cyprus continues to be average among 
both the general public and companies. Overall, 50% of the general population and 45% of 
companies perceive the level of independence of courts and judges to be ‘fairly or very good’ 
in  202210.  According  to  data  in  the  2022  EU  Justice  Scoreboard,  no  clear  trend  can  be 
identified in the evolution of the perceived level of independence since 2016. The perceived 
judicial  independence  among  the  general  public  has  slightly  increased  in  comparison  with 
2021 (48%), but it is lower than in 2016 (56%). The perceived judicial independence among 
companies remains at the same level as in 2021. 

The  proposed  appointment  procedure  of  the  judges  of  the  future  Supreme 
Constitutional  Court  and  High  Court  continues  to  raise  concerns.  As  referred  to  in  the 
2021 Rule of Law Report11, draft legislation was already submitted to the Parliament at the 
end  of  2020.  The  draft  legislation  provides  that  the  decisions  on  the  appointment  of  the 
judges  and  the  Presidents  of  the  new  courts  would  be  solely  taken  by  the  President  of  the 

1   CEPEJ (2021), Study on the functioning of the judicial systems in the EU Member States, p. 241. 
2   The Assize Court has unlimited jurisdiction to hear and determine at first instance any criminal case. 
3   Law 131 (I)/2015 on the Establishment and Function of the Administrative Court. 
4   Law 73 (I)/2018 on the Establishment and Function of the Administrative Court for International Protection. 
5   The Supreme Court acts as an appellate body. It also acts as a Constitutional Court. 
6   Contribution from the Supreme Court of Cyprus for the 2022 Rule of Law Report. 
7   Constitution of Cyprus, Art.  157.2. This constitutional provision is further elaborated in Law No. 33/64 of 

the Administration of Justice, Section 10.  

8   The Attorney General has the power, exercisable at his discretion in the public interest, to institute, conduct, 
take over and continue or discontinue any proceedings for an offence against any person (legal or natural) in 
the Republic. The Attorney General is also the legal adviser of the Republic, of the President, of the Council 
of Ministers and of the Ministers individually. He performs all other functions and duties conferred on him 
by the Constitution or by statutory law. See Constitution of Cyprus, Art. 112. 

9   The two functions, prosecution and legal advisor are separate and operate with different staff. The Attorney 
General’s representatives (Counsels of the Republic) act on his behalf and  only take instructions from him. 
All Counsels of the Law Office of the Republic are members of the Public Service and they are regulated by 
the Public Service Law and Regulations including disciplinary procedures as all other public servants.  

10   Figures 50 and 52, 2022 EU Justice Scoreboard. The level of perceived judicial independence is categorised 
as  follows:  very  low  (below  30%  of  respondents  perceive  judicial  independence  as  fairly  good  and  very 
good); low (between 30-39%), average (between 40-59%), high (between 60-75%), very high (above 75%). 

11   2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 3. 

3 

 
                                                 
Republic12. It was also provided that an Advisory Judicial Council would be set up - different 
from the Supreme Council of Judicature - responsible for preparing a list of the most suitable 
candidates  for  appointment.  However  this  list  would  not  be  binding  on  the  President.  The 
envisaged participation of the Attorney General in the Advisory Council without voting right 
is a positive development13. In addition, the lack of a possibility for candidates to challenge a 
decision of the Advisory Judicial Council, and the absence of clear pre-established criteria for 
the appointments, raise concerns. On 22 September 2021, the Cypriot authorities requested an 
opinion from the Venice Commission on three pending Bills reforming the Judiciary14. On 13 
December 2021, the Venice Commission made a number of recommendations regarding the 
draft legislation15, which focus on the composition of the Advisory Judicial Council and the 
procedures  of  appointment  of  the  judges  of  the  two  highest  jurisdictions.  In  particular,  the 
Venice Commission recommended to replace the Attorney General in the composition of the 
Advisory Judicial Council; to provide for a graduated recommendation by the Council to the 
President;  to  provide  that  the  reasons  for  the  decisions  of  the  Council  should  be  made 
available to applicants on request; to provide that an unsuccessful candidate should have the 
right  to  challenge  the  decision  of  the  Advisory  Judicial  Council,  and  to  provide  for  pre-
existing, clear and transparent criteria for appointment that would be binding on the Council. 
Also, the Venice Commission suggested as a further improvement  that the President would 
need  to  give  reasons  in  writing  when  he  takes  any  decision  which  does  not  follow  the 
recommendation of the Advisory Judicial Council. As already noted in the 2021 Rule of Law 
report, it is important that the reform guarantees judicial independence, in line with EU law 
and  taking  into  account  Council  of  Europe  recommendations16.  On  7  July  2022,  the 
Parliament voted on the draft legislation17. 

The Reform of the Supreme Council of the Judicature raises some concerns as regards 
its  proposed  composition.  The  draft  legislation  also  contains  amendments  aiming  at 
ensuring  a  better  representation  of  the  justice  system  in  the  configuration  of  the  Supreme 
Council  of  the  Judicature,  currently  composed  of  all  the  members  of  the  Supreme  Court. 
However,  as  already  noted  by  the  Commission  in  the  2021  Rule  of  Law  Report,  it  is 
important  that  the  reform  of  the  Supreme  Council  of  the  Judicature  takes  into  account  the 

12   Currently,  Supreme  Court  Judges  are  appointed  by  the  President  of  the  Republic  from  the  ranks  of  the 
judiciary  and  upon  recommendation  of  the  Supreme  Court,  which  the  President  is  not  obliged  to  follow. 
However, according to an established practice, the President of the Republic follows the recommendations of 
the Supreme Court,  which, based on seniority, proposes the oldest judge in service  for  each  vacancy. The 
same practice applies to the appointment of the President of the Supreme Court, for which the President of 
the  Republic  always  follows  the  recommendation  to  appoint  the  oldest  judge  in  service  in  that  Court.  See 
2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 2. 

13   In the initial draft legislation, the Attorney General had a voting right. 
14   The Bill entitled the Law of 2021 on the Sixteenth Amendment to the Constitution (CDL-REF(2020)091), 
the Bill entitled Law amending the Laws relating to the Courts 1960 to (no 3) 2020 5 CDL-REF(2020)092) 
and  the  Bill  entitled  Law  amending  the  Regulations  on  the  Acquisition  of  the  Justice  (Miscellaneous 
Provisions) Laws of 1964 to 2015 (CDL-REF(2020)093). 

15   Venice  Commission  opinion  on  three  bills  reforming  the  judiciary  (CDL-AD(2021)043).  The  Venice 
Commission  made  a  general  statement  that  ‘It  is  not  in  the  remit  of  this  opinion  to  assess  the 
constitutionality of the proposed reform’ (paragraphs 55 and 61). 

16   Recommendation  CM/Rec(2010)12  of  the  Committee  of  Ministers  of  the  Council  of  Europe  to  member 
states  on  judges:  independence,  efficiency  and  responsibilities,  paras  46-48.  According  to  the  Cypriot 
authorities, the Venice Commission recommendations are now under assessment by the Ministry of Justice 
and Public Order; input from Cyprus for the 2022 Rule of Law Report, p. 7. 

17  The text as voted by Parliament is not yet public as the final steps of the legislative process are still ongoing 

before the promulgation of the legislation by the President of the Republic. 

4 

 
                                                 
Council  of  Europe  recommendations18.  In  particular,  concerns  have  been  raised  that  the 
judicial members of the Supreme Council of the Judicature are selected by seniority and not 
by  their  peers.  In  its  Opinion19,  the  Venice  Commission  recommended  to  replace  the 
Attorney  General  in  the  composition  of  the  Supreme  Council  of  the  Judicature,  unless  s/he 
participates without the right to vote and to consider having the judicial members elected by 
their peers, instead of selecting them by seniority20. 

The  proposed  strengthening  of  the  budgetary  independence  of  the  Law  Office  of  the 
Republic21  is  further  delayed.  The  adoption  of  the  draft  legislation  concerning  the 
budgetary independence of the Law Office,  remains under discussion between the Attorney 
General  and the Ministry  of  Finance since  202122.  The human resources of the  Law  Office 
were  strengthened  in  2021  with  the  recruitment  of  24  additional  lawyers  to  handle 
specifically international protection cases23.  

Quality 

Cyprus  has  committed  to  reforms  to  address  serious  concerns  regarding  the 
digitalisation  of  justice24,  starting  with  the  introduction  of  interim  digital  solutions. 
Cyprus’  commitments  in  the  framework  of  the  Recovery  and  Resilience  Facility  aim  at 
remedying  the  shortcomings  in  the  area  of  the  digitalisation  of  justice,  such  as  the  very 
limited online information about the judicial system available for the general public25 and the 
lack  of  digital  solutions  to  initiate  and  follow  proceedings  in  civil,  commercial  and 
administrative  cases,  as  well  as  the  use  of  electronic  communication  and  tools26.  Until  the 
creation of a fully operational e-justice system covering all the branches of the judiciary and 
all issues, including case management and information to the parties and the public, interim 
solutions27 are being further developed. From 1 February 2022, all new court cases are filed 
electronically.  The  Cyprus  Bar  Association  has  issued  relevant  material  and  proposed 
adequate training to lawyers28. In addition, on 17 September 2021 the Supreme Court issued a 
court 
(Electronic  Communication)  Procedural 
Regulation’ on the handling of cases through electronic communication with the Court30. 

‘Electronic  Justice 

regulation29, 

the 

18   Recommendation CM/Rec(2010)12 of the Committee of Ministers of the Council of Europe, para. 27. See 

also: 2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, pp. 3-4. 

19   Venice Commission opinion on three bills reforming the judiciary (CDL-AD(2021)043). 
20   According to the Cypriot authorities, the  Venice  Commission recommendations are now under assessment 
by the Ministry of Justice and Public Order. See: Input from Cyprus for the 2022 Rule of Law Report, p. 7. 

21   2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 1. 
22   Information received from the representative of the Attorney General in the context of the country  visit to 

Cyprus. No further explanation was given on this delay. 

23   Ibid. As regards the fight against corruption, see infra under section II. 
24   European Commission (2022), Report on the implementation of the Recovery and Resilience Facility, p. 40. 
25   Figure 41, 2022 EU Justice Scoreboard. 
26   Figures 42 and 44, 2022 EU Justice Scoreboard. 
27   2021  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law  situation  in  Cyprus,  p.  4,  and  input  from 

Cyprus for the 2022 Rule of Law Report, pp. 3-4. 

28   Information received from the Bar Association in the context of the country visit to Cyprus. 
29   The  Supreme  Court  can  issue  regulations  (ordinances)  on  procedural  issues  addressed  to  the  judiciary 

including in the area of e-justice. 

30   Information received from the Supreme Court and the Bar Association in the context of the country visit to 
Cyprus.  Furthermore,  on  regulating  the  electronic  filing  aspect,  the  Supreme  Court  issued  on  15  January 
2021,  the  Electronic  Justice  (Electronic  Filing)  Procedural  Regulation,  and  meanwhile  amended  other 
Procedural Regulations in order to facilitate the use of electronic systems. 

5 

 
                                                 
An  ongoing  project  initiated  by  the  Director  of  justice  Reform  for  the  creation  of  an 
independent Courts’ Service and the restructuring of registries aims at modernising the 
management of the court system. According to the Cypriot authorities, the objective of this 
project is to separate the administrative management of the courts from the judicial functions 
and to establish a professional management structure to support the judiciary and to develop 
strategy  and  plans  to  ensure  an  effective  administration  of  justice31.  The  project  will  be 
completed by the end of December 202232. 

The  Cyprus  Bar  Association  is  paying  special  attention  to  preserve  the  integrity  of  its 
members.  Steps  have  been  taken  to  improve  disciplinary  mechanisms,  in  particular  as 
regards  compliance  with  rules  on  Anti  Money  Laundering  (AML).  According  to  the  Bar 
Association, investigations have become more efficient  through increased training activities 
for members of the AML unit of the disciplinary body of the Bar Association and cooperation 
with forensic fraud experts33. 

Efficiency  

The  justice  system  continues  to  face  serious  challenges  as  regards  its  efficiency34.  The 
time  needed  to  resolve  civil,  commercial  and  administrative  cases  and  other  cases  in  first 
instance courts (1087 days in 2020 compared to 882 days in in 2019) still remains among the 
highest  in  the  EU35.  Six  additional  judges  were  recruited  in  July  202136  to  reinforce  the 
taskforce which has  been created in  2020 focusing in  particular on handling the backlog of 
cases37.  In  administrative38  courts  at  first  instance,  the  length  of  proceedings  increased 
substantially  (863  in  2020  compared  to  495  days  in  2019)39  and  the  clearance  rate 
experiences an important decrease (84% in 2020 compared to 170% in 2019 and to 219% in 
2018)40. 

The new rules of civil procedure41 are expected to have a positive impact on the general 
efficiency  of  the  justice  system,  including  in  reducing  backlogs42.  The  new  rules  should 

31   Contribution of the Congress of the Conference of European Constitutional Courts for the 2022 Rule of Law 
Report,  p.  10.  The  project  is  supported  by  the  Council  of  Europe.  See  also  Council  of  Europe,  ‘Call  for 
tenders for the provision of consultancy in the area of courts management …in Cyprus’.  

32   Information  received  from  the  Ministry  of  Justice  and  Public  Order  in  the  context  of  the  country  visit  to 

Cyprus. 

33   Contribution  of  the  Cyprus  Bar  Association  for  the  2022  Rule  of  Law  Report,  p.  3;  Information  received 
from the Bar  Association in the context of the  country  visit to Cyprus and  Contribution  of the Council of 
Bars and Law Societies of Europe (CCBE) for the 2022 Rule of Law Report, p. 20. 
34   2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 5. 
35   Figure 6, 2022 EU Justice Scoreboard.  
36   Input from Cyprus for the 2022 Rule of Law Report, p. 5. 
37   2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 5. 
38   Administrative final court decisions are often not complied with; after annulment the  Administration often 
comes back with the same decision. Contribution from the Cyprus Bar Association for the 2022 Rule of Law 
Report, p. 6. 

39   Figure 9, 2022 EU Justice Scoreboard. 
40   Figure 13, 2022 EU Justice Scoreboard. The Supreme Court did not give any explanation in the context of 

the country visit for this situation.  

41   The rules of civil procedure have been approved by the Supreme Court on 19 May 2021 (there is no need for 
further legislation). See 2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 
5. 

42   Within  the  framework  of  the  Recovery  and  Resilience  Plan,  a  commitment  has  been  undertaken  for  the 
reduction in the backlog of cases and appeals pending for over two years before the Districts Courts and the 

6 

 
                                                 
 
ensure that the timelines for trials will be planned from the outset, while the procedures will 
become  more  flexible  and  efficient.  This  aims  at  addressing  the  problem  of  continuous 
postponements,  which  currently  unnecessarily  prolong  the  length  of  proceedings  and  raise 
legal  costs43.  Among  the  key  innovations  is  that  the  judges  (and  not  anymore  the  parties44) 
have the main responsibility for structuring the debates during civil proceedings. Other such 
innovations  are  that  a  number  of  EU  civil  law  instruments  are  incorporated45  and  that  e-
justice is introduced in all procedures. A commitment has been undertaken by the Supreme 
Court for the implementation of the new rules of civil procedure for the new cases submitted 
to the courts as from 1 September 202346. This timeline allows for training of stakeholders, 
including  judges  and  lawyers.  The  Commission  in  cooperation  with  the  Council  of  Europe 
supported the Cypriot authorities in preparing the ground for the implementation of the new 
rules through training offered to all key stakeholders (judges, lawyers, court registrars) held 
between  September  and  December  202147.  Training  continues  with  actions  planned  until 
202548; the Bar Association is actively involved in this area49. 

Laws  establishing  two  new  Courts  have  been  adopted.  The  two  bills50  concerning  the 
establishment  of  a  Commercial  and  Admiralty  Court51  were  adopted  on  12  May  202052,  to 
provide appropriate jurisdictions for the determination of high profile commercial cases and 
admiralty cases53. In addition, the draft legislation which was voted on 7 July also provides 
for the establishment of a Court of Appeals54. 

II. 

ANTI-CORRUPTION FRAMEWORK 

In  February  2022,  the  institutional  framework  for  anti-corruption  was  improved  with  the 
establishment  of  a  National  Anti-corruption  Authority.  The  implementation  of  the  Action 
Plan  against  Corruption  (2021-2026)  continues  under  the  monitoring  of  the  Office  of 
Transparency  and  Prevention  of  Corruption.  The  Attorney  General  maintains  the  overall 

Supreme Court - by 20% from the 31 December 2020 level and by 40% from the 31 December 2020 level. 
To  this  end,  an  action  plan  is  now  being  prepared  with  specific  annual  targets.  Input  from  Cyprus  for  the 
2022 Rule of Law Report, p. 5. 

43   Speech  of  Mrs  Stephie  Dracos,  CY  Minister  of  Justice  during  the  final  Conference  for  the  Official 
Completion of the Project for the modernisation of the Civil Procedure Rules on 8 December 2021 organised 
by the Supreme Court in cooperation with the European Commission and the Council of Europe.  

44   ‘Rules of Civil Procedure’, part 3; published in the website of the Supreme Court of Cyprus. 
45   Regulation  (EC)  No  1896/2006,  creating  a  European  order  for  payment  procedure,  Regulation  (EC)  No 
861/2007 establishing a European Small Claims Procedure and Directive 2008/52/EC on certain aspects of 
mediation in civil and commercial matters. 

46   Input from Cyprus for the 2022 Rule of Law Report, p. 5. 
47   Final  Conference  for  the  Official  Completion  of  the  Project  for  the  modernisation  of  the  Civil  Procedure 

Rules on 8 December 2021. 

48   Information received from the Director of Reform and Training in the context of the country visit to Cyprus. 
49   Information received from the Bar Association in the context of the country visit to Cyprus. In more general 
terms, Cyprus’ Resilience and Recovery Plan includes an investment to train judges on various legal topics 
and  judicial  skills  to  address  lifelong  learning  needs;  see  European  Commission  (2022),  Report  on  the 
implementation of the Recovery and Resilience Facility, 2022, p. 41. 

50   2020 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 5. 
51   Until  now,  the  Supreme  Court  had  the  main  jurisdiction  together  with  the  District  Courts  to  act  as  an 
Admiralty Court to determine maritime claims. See Courts of Justice Law, No 14/1960, article 19 and 22B. 
52   Establishment and Operation of Commercial Court and Admiralty Court Act 2022, Law 108 of 12/05/2022. 

Information received from the Rule of Law Contact Point on 17 May 2022. 

53   Input from Cyprus for the 2022 Rule of Law Report, p. 7. 
54   2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p.4. 

7 

 
                                                                                                                                                        
competence  to  prosecute  criminal  offences,  including  corruption,  and  continues  to  provide 
legal advice to law enforcement authorities investigating corruption offences.  

The perception among experts and business executives is that the level of corruption in 
the  public  sector  remains  relatively  high.  In  the  2021  Corruption  Perceptions  Index  by 
Transparency International, Cyprus scores 53/100 and ranks 15th in the European Union and 
52nd globally55. This perception has deteriorated over the past five years56. The 2022 Special 
Eurobarometer on Corruption shows that 94% of respondents consider corruption widespread 
in  their  country  (EU  average  68%)  and  57%  of  respondents  feel  personally  affected  by 
corruption in their daily lives (EU average 24%)57. As regards businesses, 92% of companies 
consider that corruption is widespread (EU average 63%) and 78% consider that corruption is 
a problem when doing business (EU average 34%)58. Furthermore, 29% of respondents find 
that  there  are  enough  successful  prosecutions  to  deter  people  from  corrupt  practices  (EU 
average 34%)59, while 8% of companies believe that people and businesses caught for bribing 
a senior official are appropriately punished (EU average 29%)60.  

The  Parliament  passed  the  law  for  the  establishment  of  the  National  Anti-corruption 
Authority  in  February  2022,  however,  the  Authority  is  not  yet  fully  operational.  By 
law61, the Authority is responsible for transparency and prevention of corruption in both the 
public  and  private  sectors62.  The  operational  establishment  of  the  Authority,  which  was 
expected to be operational since 1 July 2022, started with the appointment of the members of 
the  board  by  the  President  of  Cyprus  on  3  May  202263,  and  the  allocation  of  financial  and 
technical  resources.  However,  the  selection  of  the  specialised  investigative  staff  remains 
pending,  which  is  needed  to  achieve  the  full  operability  of  the  Authority.  In  addition,  the 
Ombudsperson is competent alongside others64 to monitor the good functioning of the public 
administration  and  can  also  receive  complaints  regarding  maladministration  linked  to 
possible public sector corruption. In this case, the outcome of the investigation will be sent to 
the Attorney General Office to examine the possible criminal offences. However, in the past 

55   Transparency  International  (2022),  Corruption  Perceptions  Index  2021,  pp.  2-3.  The  level  of  perceived 
corruption  is  categorised  as  follows:  low  (the  perception  among  experts  and  business  executives  of  public 
sector  corruption  scores  above  79);  relatively  low  (scores  between  79-60),  relatively  high  (scores  between 
59-50), high (scores below 50). 

56   In 2017 the score was 57, while, in 2021, the score is 53. The score significantly increases/decreases when it 
changes  more  than  five  points;  improves/deteriorates  (changes  between  4-5  points);  is  relatively  stable 
(changes from 1-3 points) in the last five years. 

57   Special  Eurobarometer  523  on  Corruption  (2022).  The  Eurobarometer  data  on  citizens’  corruption 
perception and experience is updated every second year. The previous data set is the Special Eurobarometer 
502 (2020). 

58   Flash Eurobarometer 507 on Businesses’ attitudes towards corruption in the EU (2022). The Eurobarometer 
data on business attitudes towards corruption as is updated every second year. The previous data set is the 
Flash Eurobarometer 482 (2019). 

59   Special Eurobarometer 523 on Corruption (2022).  
60   Flash Eurobarometer 507 on Businesses’ attitudes towards corruption in the EU (2022).  
61   ‘Setting up the Anticorruption Authority’, Law 19(1)2022 of 17 February 2022. 
62   See  written  contribution  received  from  the  Office  of  Transparency  and  Prevention  of  Corruption  of  the 
Ministry of Justice and Public Order in the context of the country visit to Cyprus, p. 2. For the year 2022, the 
Authority will be allocated a budget estimated between EUR 700 000 and EUR 800 000. 

63   Letter of the Attorney General of 9 May 2022 addressed to the Commission. 
64   See infra section IV. 

8 

 
                                                 
years  the  Ombudsperson  has  not  received  any  substantiated  reports  directly  connected  to 
corruption65. 

The strategic anti-corruption framework continues to be implemented, with additional 
resources  allocated  to  the  controlling  bodies.  In  2021,  26  additional  officers  were 
appointed to the control units of public institutions66, who will receive training on corruption-
risk  management  as  well  as  a  manual  of  procedures67.  In  2021,  the  Internal  Audit  Service 
structure expanded to a total of 15 units (from the seven previously existing entities)68, while 
its budget of EUR 300 000 remains unchanged compared to previous years69. A new Internal 
Audit Manual for the Internal Audit Service is under preparation70. The Government is still 
working  on  developing  a  strategy  for  the  rotation  of  civil  servants  more  exposed  to  risk  of 
corruption71. A EUR 2 million fund is made available to cover, at different percentages per 
type of entity, the costs required by public and private organisations to obtain the certification 
of the anti-bribery standard72.  

The  prosecution  authorities  continue  to  improve  their  capacity,  although  results 
regarding  high-level  corruption  cases  are  lacking.  The  adoption  of  the  draft  legislation 
concerning  the  budgetary  independence  of  the  Attorney  General,  remains  under  discussion 
between the Attorney General and the Ministry of Finance since 202173. Since 2021, a total 
of  42  new  lawyers  were  recruited  by  the  Attorney  General  office74,  although  46  additional 
positions  still  remain  vacant75.  At  the  beginning  of  2022,  an  anti-corruption  taskforce  was 
created under the competence of the Attorney General office, with specialised officers from 
relevant institutions (such as the National Law Office, the Anti-money Laundering Unit, and 
the  Police,  in  addition  to  ad-hoc  experts  from  other  entities)76.  The  Financial  Crime 

65   Information received from the Ombudsperson in the context of the country visit. 
66   Notably in the Ministries of Defence, Agriculture, Environment, Justice and Public Order, Industry, Foreign 
Affairs and Health. Information received from the Office of Transparency and Prevention of Corruption of 
the Ministry of Justice and Public Order in the context of the country visit. 

67   Input from Cyprus for the 2022 Rule of Law Report, p. 14. 
68   Information  received  from  the  Office  of  Transparency  and  Prevention  of  Corruption  of  the  Ministry  of 

Justice and Public Order in the context of the country visit. 

69   Information  received  from  the  Office  of  Transparency  and  Prevention  of  Corruption  of  the  Ministry  of 

Justice and Public Order in the context of the country visit. 
70   Input from Cyprus for the 2022 Rule of Law Report, p. 14. 
71   To that end, specific recommendations were made to all Ministries, Deputy Ministries, Independent Offices, 
Departments  and  Services.  The  rotation  arrangements  are  expected  to  be  addressed  to  the  Department  of 
Public Administration and Personnel in the end of August 2022. See also,  input from Cyprus for the 2022 
Rule of Law Report, p. 15. 

72   Information  received  from  the  Office  of  Transparency  and  Prevention  of  Corruption  of  the  Ministry  of 
Justice  and  Public  Order  in  the  context  of  the  country  visit.  At  the  end  of  2020,  the  Council  of  Ministers 
launched a national integrity programme based on the International Organisation for Standardisation’s (ISO) 
standard on anti-bribery management system. 2021 Rule of Law Report, Country Chapter on the rule of law 
situation in Cyprus, p. 6. 

73   See above p. 5. 
74   Including  three senior public prosecutors,  three investigators, 13 supporting public prosecutors, in addition 
to the three officers who were reassigned from the Law  Office of the Republic. Information received from 
the Office of the Attorney General in the context of the country visit. 

75   In the course of 2021 and 2022, the Attorney General’s Office has recruited and promoted also permanent 
legal personnel, including 10 senior counsels of the Republic, 14 counsels, 3 senior public prosecutors, 13 
public  prosecutors,  2  senior  and  5  regular  anti-money  laundering  officers,  in  order  to  enhance  human 
resources. Information received from the Office of the Attorney General in the context of the country visit. 
76   See written contribution received from the Office of the Attorney General in the context of the country visit, 

p. 3. 

9 

 
                                                 
Investigation Office of the Police has been further reorganised into two branches (namely the 
Financial Crime Branch and the Financial Investigations Branch), and four new accountants 
were recruited in 202177. Eight multi-jurisdiction cases on embezzling European Union funds 
remain  pending  for  investigation78.  Despite  these  enhanced  efforts  and  resources,  there  are 
still no results on the adjudication of high-level cases of corruption79. 

The legislative framework on lobbying has become more robust, while the approval of 
an additional act on asset declarations remains pending. The Law on the transparency of 
lobbying entered into force in February 202280, except for the sections 6 and 7 of the Law (on 
the sanctions and penalties, respectively), which will enter into force in January 202381. The 
law  creates  a  public  register  on  lobbying  activities,  monitored  by  the  newly  established 
national  Anticorruption  Authority82.  Despite  declaration  of  assets  for  some  high-ranking 
officials,  such  as  members  of  the  Parliament  and  the  President  of  the  Republic  being 
regulated, this is not the case for all elected officials and other civil servants. A draft bill on 
assets  declaration  of  elected  and  other  civil  servants  aims  to  modernise  the  relevant  legal 
provisions to make them more effective. The bill remains pending before the Parliamentary 
Committee  since  2021,  but  is  expected  to  be  submitted  before  the  plenary  of  the  House  of 
Representatives by the end of 202283. The existing asset declaration requirement for members 
of  the  Parliament  does  not  cover  all  forms  of  assets  above  a  certain  threshold,  including 
immovable  property  such  as  vehicles.  Furthermore,  the  effectiveness  of  the  verification 
mechanism  has  been  questioned84.  While  the  law  on  political  parties85  was  evaluated 
positively  by  GRECO86,  the  data  on  the  implementation  of  the  asset  disclosure  mechanism 
continues  to  be  lacking,  thus  the  concerns  set  out  in  the  previous  two  years’  Rule  of  Law 
reports remain unaddressed87. 

While  the  implementation  of  provisions  on  conflict  of  interest  for  members  of 
Parliament  continues,  no  progress  was  made  concerning  similar  provisions  for  the 

77   Input from Cyprus for the 2022 Rule of Law Report, p. 9. 
78   Input from Cyprus for the 2022 Rule of Law Report, p. 10. Furthermore, three requests received through the 
EPPO concerning criminal cases investigated by other Member States were executed in 2021 by the Office 
for the Execution of European Orders and Requests  for Judicial  Assistance. See  written  contribution  from 
the Law Office of the Republic in the context of the country visit, p. 2. 

79   Information received from the Office of the Attorney General in the context of the country visit.  2021 Rule 

of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 7. 

80   Law n. 20(I) of 2022 ‘On transparency in public decision-making and related matters’. 

1)  This  Law  shall  enter  into  force  on  the  date  of  entry  into  force  of  the  Law  on  the  Establishment  and 
Operation of an Independent  Authority against Corruption. (2) Subject to the provisions of subsection (1), 
Part VI and Part VII shall enter into force on 1 January 2023. 

82   Information on such contacts as well as its content and purposes, shall be officially recorded and be publicly 
available.  See  written  contribution  received  from  the  Law  Office  of  the  Republic  in  the  context  of  the 
country visit, pp. 2-3. 

83   See written contribution from the Parliament in the context of the country visit, p. 2; Input from Cyprus for 
the 2022 Rule of Law Report, p. 11. See also the 2021 Rule of Law Report, Country Chapter on the rule of 
law situation in Cyprus, p.7. 

84   GRECO Fourth Evaluation Round - Second Compliance Report Cyprus, p. 5-6. 
85   The Political Parties law n.175 (Ι) of 2012. 
86   In  the  context  of  its  Third  Evaluation  Round.  See  the  Addendum  to  the  Second  Compliance  Report  on 
Cyprus in the context of the GRECO Third Evaluation Round – Second Compliance Report , para. 24, p. 5: 
‘with  respect  to Theme  II  – Transparency  of  Party  Funding,  all  recommendations  have  been  implemented 
satisfactorily’. 

87   2020 Rule of  Law Report,  Country  Chapter on the rule of law  situation  in  Cyprus, p. 8 and 2021 Rule of 

Law Report, Country Chapter on the rule of law situation in Cyprus, p. 9. 

10 

 
                                                 
public  service  as  a  whole.  The  compliance  of  members  of  Parliament  with  their  Code  of 
Conduct, adopted in February 2021, is monitored by a Parliamentary Committee88. In 2021, 
there were 21 cases examined on conflicts of interest, and three cases in 202289. In 2021, four 
complaints  concerned  misconduct  of  members  of  Parliament,  and  in  one  case  an  oral 
reprimand was issued. Although some rules on conflicts of interest in the public service exist 
in  different  laws,  no  progress  was  made  concerning  the  design  of  a  single  regulation  on 
conflict of interest for all State officials90. 

The legislation on whistleblower protection was adopted by the Parliament and entered 
into  force  in  February  202291.  The  legislation92  aims  at  transposing  the  EU  Directive  on 
whistleblower protection93 and at providing for supplementary protection to persons reporting 
acts  of  corruption  both  in  the  public  and  the  private  sectors94,  with  sanctions  reduced  for 
individuals that cooperate with the police95. 

The implementation of ethics provisions for the police and the judiciary continued over 
the  past  year.  In  2021,  the  Police  internal  affairs  service  (PIAS)96  received  101  reports  of 
crimes  allegedly  committed  by  police  officers.  Seventeen  cases  were  investigated  (with  no 
evidence found of crime), and three cases remain pending. Ethical conduct is part of police 
officers’  annual  appraisal,  as  per  the  code  of  police  ethics,  and  recruits  receive  related 
training97.  In  2021,  there  were  83  disciplinary  procedures  opened,  which  resulted  in  43 
decisions  with  sanctions (either a fine or  a reprimand) issued by  the Chief of Police98. The 
number  of  cases  received  by  the  Investigation  of  Allegations  and  Complaints  against  the 
Police (IAIACAP) increased in recent years. The budget of IAIACAP increased in 2021 up to 
EUR 322 00099. Furthermore, members of the judiciary attend a compulsory annual training 
on ethics organized by the Director of Judicial Reform and Training100. 

88   2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 8.  
89   See written contribution from the Parliament in the context of the country visit, p. 1. 
90   See written contribution from the Ministry of Foreign Affairs in the context of the country visit, p. 1. 
91   However, legal entities of the private law, with a staff of 50 to 249 members, have until 17 December 2023 

to establish internal channels for whistleblowers. 

92   Protection of persons  who  have reported infringements of  EU and  national law, law  number 6(I) of 2022, 

published in the national Gazette on 4 February 2022. 

93   Directive (EU) 2019/1937 on the protection of persons who report breaches of Union law (OJ L 305), p. 17. 
94   The new law is combined with the Protection of Witnesses Law 95(I)/2001. Information received from the 
Office  of  Transparency  and  Prevention  of  Corruption  of  the  Ministry  of  Justice  and  Public  Order  in  the 
context of the country visit. 

95   The maximum penalty is half of the one provided for the offence. Information received from the Office of 
Transparency and Prevention of Corruption of the Ministry of Justice and Public Order in the context of the 
country visit. 

96   The directorate of professional standards and inspection is responsible for disciplinary matters, and performs 
regular  checks  on  police  officers.  PIAS  has  a  staff  of  21  police  officers,  and  an  annual  budget  of  around 
EUR  80  000.  In  addition  to  specific  risk  testing  and  investigations,  PIAS  officers  deliver  anticorruption 
training  to  members  of  the  police.  The  Professional  Standards  and  Inspection  Directorate  of  the  Police  is 
responsible for disciplinary matters of police officers. Information received from the PIAS in the context of 
the country visit. 

97   Information received from the Police internal affairs service in the context of the country visit. 
98   Ibid. 
99   Compared to EUR 280 000 allocated in 2018, EUR 308 000 in 2019 and EUR 317 000 for 2020. Input from 

Cyprus for the 2021 Rule of Law Report, p. 9. 

100  Information  received  from  Director  of  Judicial  Reform  and  Training  in  the  context  of  the  country  visit  to 

Cyprus. 

11 

 
                                                 
Some  action  was  taken  regarding  Cyprus’  investor  citizenship  scheme.  The  European 
Commission has frequently raised its serious concerns about investor citizenship schemes and 
certain  risks,  including  corruption  that  are  inherent  in  such  schemes101.  The  infringement 
procedure launched in October 2020102 concerning Cyprus’ scheme is ongoing. The investor 
citizenship scheme was phased out as of November 2020103 with pending applications having 
been handled  until  30 July  2021104.  The deprivation of nationality previously  granted to 45 
individuals  under  the  investor  citizenship  scheme  proposed  by  the  authorities  is  currently 
under review by the  Independent  Committee. However, the legal  framework of the scheme 
remains in force105.  

Initiatives  previously  established  for  the  prevention  of  corruption-risk  during  the 
COVID-19  pandemic  remained  in  place.  The  automated  control  mechanism  on  the 
recipients of COVID-related subsidies, created by the Ministry of Labour, Welfare and Social 
Insurance, continued to be operational, paired with the price limitation for the medicines and 
medical devices already in place in 2021106. 

III.  MEDIA PLURALISM AND MEDIA FREEDOM 

In Cyprus, freedom of expression and the right of access to information find legal and formal 
protection  in  the  Constitution.  Secondary  legislation  expressly  ensures  protection  of 
journalistic sources, fosters media pluralism in the radio and television sector, enshrines the 
formal  independence  of  the  media  regulator  and  details  the  right  of  access  to  public  sector 
information. The government has tabled a Law on the safeguarding of freedom of the press 
and the operation of the media107. 

In  December  2021,  Cyprus  adopted  the  Radio  and  Television  Organizations 
(Amendment)  Law  and  the  Cyprus  Broadcasting  Corporation  (Amendment)  Law. 
These  Amending  Laws,  adopted  with  a  view  to  aligning  Cypriot  legislation  with  the  new 
Audiovisual Media Service Directive108, expressly declare the independence of the regulator 
for  audio-visual  media  services,  the  Cyprus  Radio  Television  Authority  (CRTA),  by 
expressly  stipulating  that  the  Authority  shall  be  functionally  and  effectively  independent. 

101  As  mentioned in the EU Commission's report of January  2019 (COM(2019) 12 final), those risks relate in 
particular  to  security,  money  laundering,  tax  evasion  and  corruption  and  the  Commission  has  been 
monitoring  wider  issues  of  compliance  with  EU  law  raised  by  investor  citizenship  schemes.  As  regards 
investors citizenship scheme in Cyprus see 2021 Rule of  Law Report,  Country  Chapter  on the rule of law 
situation in Cyprus, p. 7. 

102  European Commission (2020), Press Release of 20 October 2020, ‘Investor citizenship schemes: European 

Commission opens infringements against Cyprus and Malta for “selling” EU citizenship’. 

103  ‘Cyprus Investment Programme’ (CIP). Written contribution from the Ministry of Interior in the context of 

the country visit, p. 1. 

104 The Inquiry Commission that was launched in 2020 (see 2021 Rule of Law Report, Country Chapter on the 
rule of law situation in Cyprus, p.7) has submitted its conclusions to the Attorney General in June 2021. 
105  Following Russia’s invasion of Ukraine, the Commission also called on Member States operating an investor 
citizenship  scheme  to  repeal  it  immediately  and  to  assess  the  possibility  to  revoke  such  naturalisations 
previously  granted  to  certain  Russian  and  Belarusian  individuals  (see  Commission  recommendation  on 
immediate steps in the context of the Russian invasion of Ukraine in relation to investor citizenship schemes 
and  investor  residence  schemes  (C(2022)  2028  final)).  Cyprus  has  initiated  the  process  of  deprivation  of 
Cypriot nationality for eight investors and 28 family members subject to EU restrictive measures. 

106  Input from Cyprus for the 2022 Rule of Law Report, p. 14. 
107  Cyprus ranks 65th in the 2022 Reporters without Borders World Press  Freedom Index compared to 26th in 

the previous year.  

108  Directive (EU) 2018/1808 of 14 December 2018 concerning the provision of audiovisual media services.  

12 

 
                                                 
While  the  Media  Pluralism  Monitor109  maintains  an  overall  low  risk  score  for  the 
independence of the media regulator, it flags the unclear selection criteria for the appointment 
of  members  by  the  government  and  a  lack  of  sufficient  transparency  about  its  operation  as 
issues of some concern.  

The  regulatory  framework  relating  to  transparency  of  media  ownership  in  the  audio-
visual  media  sector  has  been  somewhat  strengthened.  The  Radio  and  Television 
Organisations Law as amended in December 2021 addresses the gaps previously identified in 
the 2020 and 2021 Rule of Law reports110 by obliging all media service providers under the 
jurisdiction  of  the  Republic  to  make  accessible  to  the  CRTA  information  concerning  their 
ownership  structure,  including  the  beneficial  owners111.  However,  the  Media  Pluralism 
Monitor112 - highlighting the fact that these transparency rules apply exclusively to broadcast 
media, which makes determining cross-ownership in the sector very hard - rates the area as a 
high risk one. Furthermore, MPM concludes that this lack of clarity does not permit a proper 
understanding of news media concentration in the country which is, consequently, also rated 
as high risk113. 

State advertising remains largely unregulated in law, but a set of guidelines have been 
elaborated.  The  Cypriot  Ministry  of  Interior  has  adopted  a  set  of  guidelines114  geared  at 
establishing  a  framework  for  the  implementation  of  awareness  raising  and  on  advertising 
campaigns  performed  by  the  government’s  press  and  information  office  with  a  view  to 
enhancing  the  transparency  and  foreseeability  of  the  process.  Though  the  impact  of  the 
recently  adopted  guidelines  was  not  taken  into  account  in  its  analysis,  the  Media  Pluralism 
Monitor  slightly  raised  the  risk  level  for  this  area  ‘due  to  the  general  uncertainties  and  the 
lack of transparency surrounding the allocation of state resources’115.  

While the Law on the Cyprus Broadcasting Corporation (CyBC)116 lays down rules on 
the governance and financing of the CyBC, several weaknesses have been identified. The 
Law  provides  that  the  Chairperson,  Vice-Chairperson  and  the  members  of  the  Governing 
Board shall be appointed by the Council of Ministers for a three-year period. The Governing 
Board  decides  on  the  appointment  of  the  Director-General,  a  decision  which  is  subject  to 
approval by the Council of Ministers. The Council of Ministers may dismiss the entire Board 
or  individual  members  thereon.  While  no  criteria  or  incompatibility  criteria  regarding  the 
appointment of the Governing Board are laid down in the above-mentioned law, the Law on 
Certain  Legal  Persons  of  Public  Law117  provides  that  academic  and  other  qualifications, 
experience, social activity and contribution to society are taken into account for appointments 
in general. This leads the Media Pluralism Monitor to conclude that the fact that the criteria 
regulating the appointment of the governing board are broad is ‘exploited by the government 
as well as by political parties’118. Furthermore, given that the dismissal of public law bodies 

109  2022 Media Pluralism Monitor, country report for Cyprus p. 11 
110 2021 Rule of Law Report,  Country  Chapter on the rule of law situation in Cyprus, p. 10 and 2020 Rule of 

Law Report, Country Chapter on the rule of law situation in Cyprus, p. 9. 

111  Article 30A.  
112  2022 Media Pluralism Monitor, country report for Cyprus, p. 12-13. 
113 Ibid. 
114  Adopted on 1 March 2022. 
115  2022 Media Pluralism Monitor, country report for Cyprus, p.16. 
116  ‘Law on the Cyprus Broadcasting Corporation’, Chapter 300A, last amendment in 2021, 196/I/2021.  
117  ‘Law on Certain Legal Persons of Public Law’ (Appointment of Governing Councils), Law 149/1988. 
118  2022 Media Pluralism Monitor, country report for Cyprus, p. 16.  

13 

 
                                                 
in Cyprus occurs when a new President of the Republic is elected, can be seen as particularly 
problematic in the case of public service media. In the light of the fact that the law stipulates 
that  state  financing  shall  be  the  main  revenue  permitted  for  CyBC,  the  Media  Pluralism 
Monitor  highlights  that  this  permits  significant  state  and  political  party  influence  on  CyB’s 
operations119 No safeguards or procedures exist for evaluating the fulfilment of CyBC’s role. 
For all these reasons, the Media Pluralism Monitor considers the independence and funding 
of public service media to be an area presenting high risk120. A modernisation of the Law on 
the  Cyprus  Broadcasting  Corporation  as  well  as  of  the  rules  regulating  the  employment 
conditions of the organisation are being considered by the authorities121. 

A law aimed at providing a legal framework for press freedom has been tabled by the 
Government. The draft Law on the Safeguarding of Freedom of the Press and the Operation 
of the Media in the Republic of Cyprus122, if adopted, would introduce provisions relating to 
electronic  media,  enshrine  a  code  of  practice  in  law  and  contain  provisions  geared  at 
safeguarding  the  safety  of  journalists  and  other  media  workers.  The  Council  of  Europe’s 
Platform to promote the protection of journalism and safety of journalists had published one 
alert  since  the  publication  of  the  2021  Rule  of  Law  Report,  relating  to  the  Republic  of 
Cyprus.  It  concerned the violent attack  on the offices  of a television station during protests 
against  newly  introduced  measures  against  the  COVID-19  pandemic  and  mandatory 
vaccination. The attack was strongly condemned by the authorities and an investigation was 
promptly opened123.  

IV.  OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES 

The Republic of Cyprus is a presidential representative republic. The President of Cyprus is 
both Head of State and Head of Government. The House of Representatives is the Parliament, 
which is vested with legislative power. Both  representatives and ministers have the right of 
legislative initiative. Until the creation of a Supreme Constitutional Court, the Supreme Court 
is  competent  to  assess  the  constitutionality  of  laws  in  the  context  of  specific  cases  brought 
before  it124.  There  are  a  number  of  national  independent  authorities,  organisations  and 
institutions that aim to protect and safeguard human rights. 

On 1 January 2022, Cyprus had 10 leading judgments of the European Court of Human 
Rights pending implementation125. At that time, Cyprus’ rate of leading judgments from the 
past 10 years that remained pending was at 71% and the average time that the judgments had 

119 Ibid. 
120 Ibid. 
121  Ibid.  
122  Information received from the Ministry of Interior in the context of the country visit. 
123  Council of Europe, Platform to promote the protection of journalism and safety of journalists, Cyprus, Alert 

150/2021. 

124  The  creation  of  a  Constitutional  Court  that  will  take  over  the  constitutionality  review  of  laws  from  the 
Supreme  Court  is  planned  (see  Section  I).  Input  from  Cyprus  for  the  2021  Rule  of  Law  Report  and  2021 
Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 11. 

125  The  adoption of necessary execution  measures  for a  judgment by the European  Court of Human  Rights is 
supervised by the Committee of Ministers of the Council of Europe. It is the Committee’s practice to group 
cases against a State requiring similar execution measures, particularly general measures, and examine them 
jointly. The first case in the group is designated as the leading case as regards the supervision of the general 
measures and repetitive cases within the group can be closed when it is assessed that all possible individual 
measures needed to provide redress to the applicant have been taken. 

14 

 
                                                 
been  pending  implementation  was  2  years  and  7  months126.  The  oldest  leading  judgment, 
pending implementation for 9 years, concerns the lack of remedy with automatic suspensive 
effect in deportation proceedings and absence of speedy review of lawfulness of detention127. 
On 1 July 2022, the number of leading judgments pending implementation remains 10128. 

Public  consultation  often  does  not  take  place  at  a  sufficiently  early  stage  of  draft 
legislation  and  sometimes  does  not  occur  at  all;  however,  efforts  have  been  made  to 
improve  the  quality  of  legislation.  As  mentioned  in  the  2021  Rule  of  Law  Report,  open 
public  consultation  on  pieces  of  legislation  rarely  takes  place129.  According  to  civil  society 
organisations, the consultation process with civil society established as a practice130 for some 
years – in the absence of a formal institutional framework – has been abandoned in the last 
two years or became a mere procedural formality131. However, with regard to the quality of 
legislation more generally, in September 2021 the Government adopted a policy framework 
accompanied by an  action  plan132 aiming  at  simplifying legislation and with the purpose to 
reduce  the  administrative  burden  on  citizens  and  businesses,  modernising  the  public 
administration procedures and reducing bureaucracy. Through the action plan, which will be 
updated  on  a  regular  basis,  the  competent  services  would  also  promote  different  actions 
including better legislation and impact assessments of new legislative proposals133. 

A re-evaluation of the status of accreditation of the Ombudsperson (Commissioner for 
Administration and the Protection of Human Rights) will take place in October 2022134. 
In June 2021 the Global  Alliance of Human Rights  Institutions  (GANHRI)  Sub-Committee 
on Accreditation decided to defer the re-accreditation application of the Ombudsperson for 18 
months135.  Specifically,  GANHRI  acknowledged  the  efforts  made  by  the  Commissioner  to 
address  its  previous  recommendations  via  her  activities  since  its  2015  review136  and 
encouraged the Commissioner to continue her efforts to promote and protect all human rights, 
as  well  as  to  strengthen  the  institutional  framework  and  effectiveness.  GANHRI  noted, 

126  All figures are calculated by the European Implementation Network and are based on the number of cases 
that  are  considered  pending  at  the  annual  cut-off  date  of  1  January  2022.  See  the  Contribution  from  the 
European Implementation Network for the 2022 Rule of Law Report, p. 34. 

127  Judgment  of  the  European  Court  of  Human  Rights  of  23  July  2013,  M.A.  v.  Cyprus,  41872/10,  pending 
implementation since 2013. Cypriot authorities notified the Committee of Ministers of the Council of Europe 
on measures taken by Cyprus for the execution of the judgment as of September 2021. The decision of the 
Committee of Ministers of the Council of Europe is still pending. 

128  Data according to the online database of the Council of Europe (HUDOC). 
129 2021 Rule of Law Report, Country Chapter on the rule of law situation in Cyprus, p. 11. 
130  Including the commitment taken in the context of the Better Regulation Project and the respective circulars 
of  the  Ministry  of  Finance  and  the  Law  Office  of  the  Republic.  See:  2021  Rule  of  Law  Report,  Country 
Chapter on the rule of law situation in Cyprus, p. 11, 2020 Rule of Law Report, Country Chapter on the rule 
of  law  situation  in  Cyprus,  p.  10  and  OECD  (2019),  Indicators  of  Regulatory  Policy  and  Governance  – 
Cyprus.  

131  Contribution from KISA (Action for Equality, Support, Antiracism) for the 2021 Rule of Law Report, p. 20. 
See also written contribution received from the Cyprus Integrity Forum in the context of the country visit to 
Cyprus, p. 1. 

132  Decision No. 90.126/2021. Input from Cyprus for the 2022 Rule of Law Report, p. 21. 
133  Ibid. 
134  Information  received  from  the  Ombudsperson  in  the  context  of  the  country  visit  to  Cyprus.  The  CY 
Ombudsperson is accredited with B-status by the GANHRI. 2020 Rule of Law Report, Country Chapter on 
the rule of law situation in Cyprus, p. 11. 

135  Global  Alliance  of  Human  Rights  Institutions,  Sub-Committee  on  Accreditation,  Report  on  Cyprus,  June 

2021, pp. 34-37, https://ganhri.org/wp-content/uploads/2021/08/EN-SCA-Report-June-2021.pdf.  

136  Global Alliance of Human Rights Institutions (2015), Sub-Committee on Accreditation, Report on Cyprus, 

pp. 7-10.  

15 

 
                                                 
among  others,  that  Ombudsperson’  Institution  receives  appropriate  financial  and  technical 
resources to discharge its mandate and has management and control of its budget. GANHRI 
also  reiterated  specific  recommendations  regarding  the  Cyprus’  Ombudsperson:  on  the 
formalisation  of  the  selection  and  appointment  procedures,  on  the  pluralism  in  the 
composition  of  the  Commissioner’s  office,  on  tenure  and  her  mandate.  On  the  issue  of 
representativeness,  the  Ombudsperson  underlined  that  the  Institution  tries  to  ensure  a  large 
representation of the society137. Between 2020 and 2021, the Ombudsperson received 2 500 
complaints of which 600 were  considered unfounded. According to the Ombudsperson, the 
large majority of the opinions based on these complaints has been implemented by the public 
administration138.  In  addition,  the  Ombudsperson  promotes  a  Rule  of  Law  culture  by 
regularly organising awareness campaigns and regular interventions to end maladministration 
and human rights violations. In addition, the Ombudsperson has been conducting since March 
2021  an  awareness  campaign  in  relation  to  the  COVID-19  pandemic  and  the  protection  of 
human rights139. 

Efforts  are  being  made  to  improve  communication  between  civil  society  organisations 
and  public  authorities,  while  judicial  proceedings  are  still  ongoing  regarding  the 
registration and operation of an NGO. The civil society space is considered to be open140. 
An ongoing project from the Ministry of Interior concerns the creation of a new platform to 
facilitate  communication  of  the  associations  and  other  non-governmental  organisations 
(NGOs) and state institutions with the relevant governmental services namely the Ministry of 
Interior.  The  purpose  is  to  help  them  to  fulfil  their  legal  obligations,  including  registration 
procedures,  and  better  access  to  fund  raising141.  The  platform  is  scheduled  to  become  fully 
operational  in  August  2022142.  As  regards  the  issue  of  the  de-registration  of  certain  NGOs 
referred  to  in  the  2020  and  2021  Rule  of  Law  Reports143,  on  8  January  2021,  after  several 
unsuccessful  administrative  appeals,  one  NGO  (KISA,  Action  for  Equality,  Support, 
Antiracism)  filed  an  appeal  before  the  Administrative  Court144  against  the  decision  of  the 
Minister  of  Interior  rejecting  its  request  for  dissolution  due  to  non-compliance  with  the 
provision with the new law145. The Administrative Court rejected the appeal on 10 June 2021 

137  The  Ombudsperson  underlined  that  70%  of  the  Institution’s  staff  are  women  and  10%  of  the  posts  are 
reserved for persons with disabilities in line with the GANHRI recommendation. In addition, in 2020-2021, 
four new staff members have been recruited and six additional vacant positions are set to be filled in 2022. 
Information received from the Ombudsperson in the context of the country visit. 

138  Information received from the Ombudsperson in the context of the country visit to Cyprus. 
139 A special page was created on the website of her Office with links to all the necessary information about the 
COVID-19  pandemic  and  its  impact  on  fundamental  rights  in  general.  Ibid  and  input  from  Cyprus  for  the 
2022  Rule  of  Law  Report,  p.  31  and  p.  37.  See  also  website  of 
the  Ombudsperson: 
http://www.ombudsman.gov.cy/ombudsman/ombudsman.nsf/index_en/index_en?opendocument. 

140  Rating by CIVICUS; ratings are on a five-category scale defined as: open, narrowed, obstructed, repressed 

and closed. 

141  Input from Cyprus for the 2022 Rule of Law Report, p. 29. 
142  Information received from the Ministry of Interior in the context of the country visit to Cyprus. 
143  2020 Rule of law Report, Country Chapter on the rule of law situation in Cyprus, p. 11 and 2021 Rule of law 

Report, Country Chapter on the rule of law situation in Cyprus, p. 12. 

144  KISA is the only NGO which appealed before the Administrative Court against the administrative decision 
to  refuse  the  registration  of  the  organisation.  Information  received  from  KISA  and  the  Cyprus  Integrity 
Forum  in  the  context  of  the  Country  visit  to  Cyprus.  See  also  Franet  (2022),  Country  research  -  Legal 
environment and space of civil society organisations in supporting fundamental rights - Cyprus, pp. 10-11. 
145  Observatory  for  the  Protection  of  Human  Rights  Defenders  of  the  World  Organisation  Against  Torture, 

Report November 2021, p. 42. 

16 

 
                                                 
on the grounds that the organisation did not fulfil the registration criteria146. That decision is 
now under appeal before the Supreme Court147. 

146  Decision  of  the  Administrative  Court  of  10  June  2021  in  the  case  25/2021.  See  Cyprus  Bar  Association 

website, www.cyprusbarassociation.org. 

147  Information received from KISA in the context of the country visit to Cyprus. 

17 

 
 
 
 
                                                 
Annex I: List of sources in alphabetical order* 

* The list of contributions received in the context of the consultation for the 2021 Rule of Law report 
can  be  found  at  https://ec.europa.eu/info/publications/2022-rule-law-report-targeted-stakeholder-
consultation_en.  

Administrative Court, Decision of 10 June 2021, 25/2021. 

Centre  for  Media  Pluralism  and  Media  Freedom  (2022),  Media  pluralism  monitor  2022  –  country 
report on Cyprus. 

CEPEJ (2021), Study on the functioning of the judicial systems in the EU Member States.  

Civicus (2022), Monitor tracking civic space - Cyprus https://monitor.civicus.org/country/cyprus/. 

Congress of the Conference of European Constitutional Courts (2022), Contribution of the Congress 
of the Conference of European Constitutional Courts for the 2022 Rule of Law Report. 

Council of Bars and Law Societies of Europe (CCBE), Contribution of the Council of Bars and Law 
Societies of Europe for the 2022 Rule of Law Report. 

Council of Europe, ‘Call for tenders for the provision of consultancy in the area of courts management 
in Cyprus’. 

Council  of  Europe:  Committee  of  Ministers  (2010),  Recommendation  CM/Rec(2010)12  of  the 
Committee of Ministers to member states on judges: independence, efficiency and responsibilities.  

Council  of  Europe,  Platform  to  promote  the  protection  of  journalism  and  safety  of  journalists  – 
Cyprus https://fom.coe.int/en/alerte?years=2022&typeData=1&time=1653914309287.  

Council  of  Europe:  Venice  Commission  (2021),  Opinion  on  three  bills  reforming  the  judiciary  in 
Cyprus (CDL-AD(2021)043). 

Cyprus Bar Association (2022), Contribution from the Cyprus Bar Association for the 2022 Rule of 
Law Report. 

Cyprus  Integrity  Forum  (2022),  Written  contribution from the  Cyprus Integrity Forum  for the  2022 
Rule of Law Report in the context of the country visit. 

Cypriot Government (2021), Decision No. 90.126/2021. 

Cypriot Government (2022), Input from Cyprus for the 2022 Rule of Law Report. 

Cypriot Parliament (2022), Written contribution from the Parliament for the 2022 Rule of Law Report 
in the context of the country visit. 

Directive 2008/52/EC on certain aspects of mediation in civil and commercial matters. 

Directive (EU) 2018/1808 amending Directive 2010/13/EU on the coordination of certain provisions 
laid down by law, regulation or administrative action in Member States concerning the provision of 
audiovisual  media  services  (Audiovisual  Media  Services  Directive)  in  view  of  changing  market 
realities. 

Directive (EU) 2019/1937 on the protection of persons who report breaches of Union law. 

Directorate-General  for  Communication  (2019),  Flash  Eurobarometer  482:  businesses'  attitudes 
towards corruption in the EU. 

Directorate-General for Communication (2020), Special Eurobarometer 502: corruption. 

Directorate-General  for  Communication  (2022),  Flash  Eurobarometer  507:  businesses’  attitudes 
towards corruption in the EU.  

Directorate-General for Communication (2022), Special Eurobarometer 523: corruption. 

18 

 
European Commission (2020), 2020 Rule of Law Report, Country Chapter on the rule of law situation 
in Cyprus. 

European  Commission  (2020),  Press  release  ‘Investor  citizenship  schemes:  European  Commission 
opens infringements against Cyprus and Malta for “selling” EU citizenship’. 

European Commission (2021), 2021 Rule of Law Report, Country Chapter on the rule of law situation 
in Cyprus. 

European Commission (2022), EU Justice Scoreboard. 

European Commission (2022), Recommendation of 28 March 2022 on immediate steps in the context 
of the Russian invasion of Ukraine in relation to investor citizenship schemes and investor residence 
schemes (C(2022) 2028 final). 

European Commission (2022), Report on the implementation of the Recovery and Resilience Facility. 

European Court of Human Rights, judgment of 23 July 2013, M.A. v. Cyprus, 41872/10. 

European Implementation Network (2022), Contribution from the European Implementation Network 
for the 2022 Rule of Law Report. 

Franet, University of Nicosia and Symfiliosi (2022), Country research - Legal environment and space 
of  civil  society  organisations  in  supporting  fundamental  rights  –  Cyprus,  Vienna,  EU  Agency  for 
https://fra.europa.eu/en/publication/2022/civic-space-2022-update#country-
Fundamental  Rights 
related.  

GRECO (2018), Third Evaluation Round – Addendum to the Second Compliance Report on Cyprus 
on incriminations and transparency of party funding.  

GRECO  (2020),  Fourth  Evaluation  Round  –  Second  Compliance  Report  on  Cyprus  on  corruption 
prevention in respect of members of parliament, judges and prosecutors. 

Global Alliance of Human Rights Institutions (2015), Report and Recommendations of the Session of 
the  Sub-Committee  on  Accreditation  https://ganhri.org/wp-content/uploads/2019/11/SCA-FINAL-
REPORT-NOVEMBER-2015-English.pdf. 

KISA - Action for Equality, Support, Antiracism (2022), Contribution from KISA for the 2022 Rule of 
Law Report. 

Law Office of the Republic (2022), Written contribution from the Law Office of the Republic for the 
2022 Rule of Law Report in the context of the country visit. 

Ministry of Foreign Affairs (2022), Written contribution from the Ministry of Foreign Affairs for the 
2022 Rule of Law Report in the context of the country visit. 

Ministry  of  Interior  (2022),  Written  contribution  from  the  Ministry  of  Interior  for  the  2022  Rule  of 
Law Report in the context of the country visit. 

Ministry  of  Justice  and  Public  Order  (2022),  Written  contribution  from  the  Ministry  of  Justice  and 
Public Order for the 2022 Rule of Law Report in the context of the country. 

(2019), 

OECD 
https://www.oecd.org/gov/regulatory-policy/indicators-of-regulatory-policy-and-governance-2019-
cyprus.pdf. 

and  Governance 

Regulatory 

Indicators 

Policy 

of 

–  Cyprus 

Observatory  for  the  Protection  of  Human  Rights  Defenders  (2021),  Europe:  Open  season  on 
solidarity  –  A  study  on the  patterns  of  criminalization  of  solidarity through  the  voices  of  migrants’ 
rights 
https://www.omct.org/site-resources/legacy/Europe-Open-Season-on-
Solidarity_2021-11-15-150546_kuut.pdf. 

defenders 

Office of the Attorney General (2022), Written contribution from the Attorney General for the 2022 
Rule of Law Report in the context of the country visit. 

19 

 
 
Office of the Attorney General (2022),   Letter  of  the  Attorney  General  of  9  May  2022  addressed  to 
the European Commission. 

Regulation (EC) No 1896/2006 creating a European order for payment procedure. 

Regulation (EC) No 861/2007 establishing a European Small Claims Procedure. 

Reporters without Borders – Cyprus https://rsf.org/en/country/cyprus. 

Supreme Court of Cyprus (2021), Final Conference for the Official Completion of the Project for the 
2022 
modernisation 
http://www.supremecourt.gov.cy/judicial/sc.nsf/All/007465EBDC14AC41C22587AA0031E2C7?Ope
nDocument. 

Procedure 

December 

Rules 

Civil 

the 

on 

of 

8 

Supreme Court of Cyprus (2022), Contribution from the Supreme Court of Cyprus for the 2022 Rule 
of Law Report. 

Transparency International (2022), Corruption Perceptions Index 2021. 

20 

 
 
Annex II: Country visit to Cyprus 

The Commission services held virtual meetings in March 2022 with: 

  Commissioner for Administration and the Protection of Human Rights (Ombudsperson) 
  Cyprus Bar Association 
  Cyprus Broadcasting Corporation 
  Cyprus Integrity Forum 
  Director of Judicial Reform and Training 
  Ministry of Interior 
  Ministry of Justice and Public Order 
  Office of the Attorney General 
  Office of Transparency and Prevention of Corruption 
  Police - Internal Affairs Service 
  Police - Office of Investigation of Financial Crimes 
  Radio-Television Authority 

Press and Information Office 

  Supreme Court 

*The Commission also met the following organisations in a number of horizontal meetings:  

  Amnesty International  
  Article 19  
  Civil Liberties Union for Europe 
  Civil Society Europe  
  European Centre for Press and Media Freedom  
  European Civic Forum 
  European Federation of Journalists  
  European Partnership for Democracy 
  European Youth Forum 
  Free Press Unlimited 
  Human Rights Watch  
 
 
 
  Open Society European Policy Institute (OSEPI) 
  Osservatorio Balcani e Caucaso Transeuropa  
  Philea 
  Reporters Without Borders 
  Transparency International Europe 

ILGA Europe 
International Federation for Human Rights (FIDH) 
International Press Institute 

21